LIBRARY OF CONGRESS.^ 

# 

[SMITHSONIAN DEPOSIT.] | 







I UMTED STATES OF AMERICA. ! 



A REPORT 



TO THE 



BOARD OF HEALTH 



OF THE 



CITY OF CHICAGO, 



ON THE NECESSrrV OF AX EXTENSION OF THE 
SEWERAGE OF THE CITY. 



BY 



JOHN H. RAUCH, U. D., 



SANITARY SUPERINTENDENT. 



PUBLISHED BY ORDER OF THE BOARD. 



CHICAGO: 

O'l'TAWAY, BROWN i: COLBERT, PRINTERS, 7 A: 9 S. JEFFERSON STREET 

1873. 



A REPORT 



TO THE 



BOARD OF HEALTH 



OF THE 



CITY OF CHICAGO, 2:>e.pf. oH 



If 



ON THE NECESSITY OF AN EXTENSION OF THE 
SEWERAGE OF THE CITY. 



BY 



JOHN H, RAUCH, M. D., 



SANITARY SUPERINTENDENT. , „ 



V ' y 




PUBLISHED BY ORDER OF THE BOARD.. 



CHICAGO : 

OTTAWAY, BROWN & COLBERT, PRINTERS, 7 & 9 S. JEFFERSON STREET. 

1873- 






c^i^ 



-^ V4 





SEWERAGE 



-♦♦-^- 



The necessity of the systematic drainage of Chicago was not fully appre- 
ciated until it had suffered from epidemics for six years in succession, five 
of cholera and one of dysentery ; the death rate during this period being 
higher than in any city in the United States. As the result of this terrible 
experience, on February 14, 1855, an act was passed by the Legislature of 
Illinois, creating the Board of Sewerage Commissioners. In compliance 
with the act, the commissioners were elected as prescribed, and steps im- 
mediately taken to give practical effect to the same, in surveys, and in the 
consideration of plans for the drainage of the city. The plan proposed by 
Mr. Chesbrough was adopted in December, and in 1856 the work of 
constructing sewers commenced. This has mainly been adhered to 
since and prosecuted with varying vigor and effect, as will be seen by the 
following table showing the number of feet built annually, population, 
mortality, and death rate : 



Year. 



1856. 

1857- 
1858- 

1859 

i860. 

1861. 

1862. 

1863. 

1864. 

1865 

1866. 

i867_ 

1868. 

1869. 

1870. 

1871. 

1872. 



Feet. 



31.794 
25.681 
101,879 
55.208 
69,024 
2,826 
15.685 
39.605 
25,021 
29,948 
48,127 
89,661 
47,841 

139.705 
78,166 

50,392 
42,767 



Population. 



84.113 
93,000 
84,000 
96.000 
109,260 
120,000 
137,030 
150,000 
161,288 
178,492 
200,418 
225,000 
252,054 
280,000 
299,227 
325,000 
367.293 



Moiiality. 



Death Rate 
per 1000. 



2,086 
2,414 
2.255 
2,008 
2,264 
2,279 
2.835 
3.875 
4,448 
4,029 

6,524 
4.648 

5.984 
6,488 

7.343 

6,976 

10,156 



24.80 
25.66 
26.84 
21.36 
20.70 
18,99 
20.69 
25.83 
27-57 
22.57 
32.22 
21.17 

23-74 
23.16 

24-53 
21.46 
27.60 



For the purpose of more clearly showing the influence of this, the most 
important sanitary movement ever inaugurated in this city, I would call 
attention to the fact that for the six years commencing in 1849 and ending 
in 1854 (the six years of epidemics before alluded to), the death rate was 



4 



Board of Health, 



48.92 in a thousand, while for the next succeeding six years, commencing 

in 1856, with the construction of sewers, and ending in 1861, the death 

rate was only 22.97, with a marked prevalence of scarlet fever during four 

of the years. This may be termed the Sewerage Commission period. 

We now come to the consideration of the regime of the Board of 

Public Works, as in 1861 the duties of the Sewerage Commission were 

merged in this Board. For the next five years, it will be seen that the 

construction of sewers did not keep pace with the increase of population, 

and we have an increase in the death rate, as for this time it was 25.77. 

During this period we had an epidemic of cholera and scarlatina. It was 

not, however, until the city was again ravaged by cholera that the public 

became aroused to the necessity of paying more attention to sanitary 

matters, and in March, 1867, the law was passed providing for the present 

Board of Health. Since that time this Board has been constantly urging 

the construction of sewers ; in fact, one of the first reports of the Sanitary 

Committee, made on May 20, 1867, was upon this subject, based upon 

localities in which cholera had been most prevalent in 1866; and I am 

sorry to say that the major part of the streets recommended were not 

drained until within the past two years, and some of them still remain 

unsewered, although the sewerage of them required no deviation from the 

general system. Every year since, we have gone through the same process 

with varying success, at the same time, however, increasing the total built, 

as will be seen by the table, until 1870. In the next five years the death 

rate fell to 22.81 in 1,000, or a little less than for the first period after the 

construction of sewers began, and much less than during the immediately 

preceding period. It will also be observed that from 1867 to 187 1 the 

annual fluctuations of mortality were not so great, and that the death 

rate was more uniform, although during this time we lost over 1,400 by 

scarlet fever, 

RAIN FALL. 

That this result is entirely owing to drainage is not claimed, but it can 

be claimed that it had a marked effect in diminishing the mortality. Yearly 

fluctuations in mortality occur whether epidemics prevail or not, as will be 

seen by the following table, and that they are owing, here, to a great extent^ 

to the rain-fall of the year, particularly in the months of July, August and 

September, and sometimes in the last two weeks in Tune : 



Year. 



1866. 
1867. 
i868_ 
1869. 
1870. 
1871. 
1872. 



July, 
inches. 


Aug., 
inches. 


Sept., 
inches. 


Total 
3 nids. 
inches. 


Total 

year, 

inches. 


3.58 


7.84 


6.53 


17-95 


36.65 


I-5I 


2.32 


.40 


4.23 


21:26 


3-86 


3.58 


7.08 


14-52 


37-33 


3.2 r 


1.38 


.89 


5-48 


31.66 


3.71 


2.17 


2.82 


8.70 


23.62 


2.56 


.50 


.10 


3.16 


32.85 


4.05 


2.56 


643 


13-04 


28.94 



Death 

rate per 

1 ,000, 



32.22 
21.16 

23-74 
23.16 

24-53 
21.46 
27.61 



Sewe7^age. c 

It will be observed that in 1866 nearly one-half of the rain-fall 
occurred in the three months named, and that the death-rate for the year 
was high. In 1867 only about one-fifth fell in this time and the death 
rate is correspondingly low ; and in 1868 ten inches more rain fell than in 
the previous year, and there is an increase in the death rate. The next 
year we find a decrease in the rain-fall, or only about one-sixth of the 
total, and there is a decrease in the death rate, although there was, pro- 
portionately, a greater number of deaths by strictly contagious diseases 
than for any of the years under consideration. In 1870 there was an 
increase in the rain-fall during July, August and September, or not quite 
one-third of the total of the year; and although there was a decided 
decrease of mortality from scarlet fever; measles and whooping-cough, 
still there was an increase of the death rate of nearly i^ in 1,000. 
In 1 87 1 we find the smallest amount of rain for the season under con- 
sideration, and there is shown a greater change in the number of deaths 
than occurred since 1866, or a decrease of over 3 in 1,000 ; and this is more 
marked as the death rate for the four previous years had not been exces- 
sive. Coming to 1872, we find that almost one-half the rain-fall of the 
year took place in this period, and that there is an increase of over 6 
deaths in 1,000, or a greater change than has occurred since 1866, the 
year when nearly half the rain of the year fell in July, August, and Sep- 
tember, and when cholera prevailed. In the absence of any decided epi- 
demic, the increase in the death rate of 1872 is still more marked. The 
following table will show how far the mortality in these months is in- 
fluenced by temperature, and a comparison with the table of rain-fall 
shows that the rain-fall rather than high temperature, is the most import- 
ant factor in the death rate, although both operating together increase the 
mortality. In this table I include June, as the temperature of the last 
half of this month, about every other year, has a noticeable effect upon the 
mortality of the succeeding three months. 



Year. 



1866 
1867 
1868 
1869 
1870 
1 87 1 
1872= 



Mean Daily Temperature. 



yune. 



70 

72.4 

66.3 

654 
70.2 

72 
70.8 



July. 



70 

72.9 

81.4 

73-8 

79.6 

72.3 
72.4 



A UP us t. 



71 

72.8 

73-3 

73-5 

75 

71-3 

72 



Sept. 



64 

66 

63.2 

69-5 

71 

67 

64 



Mean for 

four 
months. 



68.3 
71 
71 
70 

73-3 
70.2 
69.2 



Death rate 
for year 
ill 1,000. 



32.22 
21.17 

23-74 
23.16 

24-53 
21.46 
27.60 



^The mean daily temperature at the Dearborn Observatory, according to the obseva- 
tions of Prof. Safiford, was 3° lower. 



6 Board of Health, 

This table shows that the mean daily temperature for the four months 
that influence life most was 68° in 1866, when the mortality w^as great^ 
and that in 1867 there was an increase of nearly 3°, and a great decrease in 
the number of deaths ; with no change in 1868, and an increase in the death 
rate; and in 1869 a decrease of i'^ in the temperature, and a decrease in 
mortality. In 1870 there was an increase of 3° of temperature, and al- 
though for this year the rain-fall was only three inches more than for the 
preceding, both causes, no doubt, operated together in increasing the 
death rate. In fact, the temperature was higher than for any of the years 
under consideration. In 1871 we find a lowering of temperature of 3*^, with 
a slight rain-fall, and a marked decrease in the death rate; and in 1872 a. 
decrease of i'^ of temperature compared with 187 1, while the rain-fall was 
four times greater and a higher death rate than occurred in any year since 
1866. The table, therefore, shows that high temperature does not have 
the same effect upon life in this city as the amount of rain that falls, and 
that in 1866 and 1872 the death rate was highest when the temperature 
was lowest ; and the natural inference is, that by proper drainae;e much of 
this waste of life can be prevented. We can regulate the drainage of the 
city, but not the temperature. 

For the purposes of corroboration, and more clearly demonstrating the 
effect of temperature and rain, attention is called to the following table : 

DEATHS. 



Year. 


yune. 


Jtily. 


A ugust. 


Sept. 


Total. 


1866 

1867 

1868... 

1869 


319 

283 

305 
434 
720 

558 
813 


706 

597 
897 

815 

1,118 

980 

1,372 


950 
697 

945 
1,072 

1,033 
890 

1,551 


739 

507 . 
741 
814 
691 

634 

988 


2,714 

2,084 

•2,888 

3,135 


1870 

1871 

1872 


3,562 
3,062 

4,724 



From the above it will be seen that the alternations in the increase and 
decrease in the number of deaths occur even with the increase of popula- 
tion, as a general rule, although occasionally there are exceptions, owing 
to a combination of conditions, such as the prevalence of contagious or 
epidemic diseases, high temperature and heavy rain-fall in these months ; 
but before the end of the year the difference is made up, and the alterna- 
tion takes place. 

The following table will show the effect of drainage on life, the First, 
Second, Nineteenth, and Twentieth Wards being omitted, for the reason 
that no just comparison can be made, owing to the change in population 
since the Fire. 



Sewerage, 



Wards. 


Density, square 
yards, to each 
inhabitant. 


Mortality to pop- 
ulation, y-tily, 
August, and 
September, i 
death in 


Number of feet 
of sewers to 
each inhabit- 
ant. 


•5 
^ CO 


Mo} tality topop- 
tilation in 
1872. One 
death in 


Third Ward 

Fourth " _ 


93 
200 

234 
450 
6go 

243 
76 

84 
73 
170 
790 
438 
374 
279 
137 
89 


193-5 
263. 

150.5 
80.12 

65. 
81.66 
114.2 

237-75 
142. 

159-33 

248. 

167. 
65-75 
74.5 
77.5 

104.5 


2.66 
3.12 

2.33 

1.06 

.66 

1-33 
1.66 

3-83 
3. 

2-5 

2.5 
1.06 

.87 
1-05 

2.58 

2.94 


322 
216 

348 
833 

933 
940 

751 
251 
374 
327 
216 
302 
1,482 

577 
464 

394 


59-49 
77.92 
53.34 
37.66 
29.63 
32.18 

39-99 
66.23 


Fifth " 


Sixth " 


Seventh " 


Eighth " ._ 


Ninth " 


Tenth " .. 


Eleventh " _. 


49.03 
63.84 
67.71 
52.62 
27.02 
33.10 
37.74 
50.70 


Twelfth " 

Thirteenth " 


Fourteenth " 


Fifteenth " 


Sixteenth " 


Seventeenth " 


Eighteenth " 



Deaths in hospitals and public institutions, 779. 



It will be seen that the health of each ward depends, principally, upon 
the number of feet of sewerage to each individual in it, no matter what 
other conditions obtain with regard to the inhabitants. Although the 
variations or exceptions are more marked in some localities than in others, — 
the chief ones depending mainly upon density of population, distance from 
the river, elevation, and natural drainage incident thereto, and to the 
character of the soil, — this rule holds good. The ward boundaries are 
necessarily arbitrary in relation to these points. We have in some of the 
wards a great extent of territory lying on the river and receding several 
miles therefrom. While, as a general rule, the densely settled portions of 
these wards are on or near the river, and undrained, and this is particu- 
larly the case with the 6th, 7th, and 15th wards; it is also true that about 
half of their population is thinly scattered over the greater extent of their 
territory, and on higher ground, thus giving the inhabitants more air, 
space, and natural drainage. These circumstances go far toward making 
the sanitary conditions of the population of these wards equal to those of 
the more wealthy, but more densely populated interior wards, which are 
more liable, from their position, to suffer from the noxious exhalations from 
any portion of the city. 

The effect of drainage is most marked in the months of July, August, 
and September, and as a necessary consequence, the differences in ward 
mortality are much greater than for the entire year. In calculating the 
number of feet of sewers to population, the sewerage constructed this year 
has been omitted, as none of it was completed until October, and after that 



8 



Board of Health, 



time this new drainage had but little effect upon life, as the rain-fall for 
the last three months was unusually light. 

The excessive crowding in the drained districts directly adjoining the 
burnt district had the effect of increasing mortality there, so that the differ- 
ence between them and the undrained portions of the city is not as great 
this year as generally occurs. 

It will also be remembered that 779 deaths occurred in the hospitals 
and public institutions of the city, which are not credited to any of the 
wards ; and that fully three-fourths came from the wards in which there is 
the least drainage, or from that portion of other wards where sewerage is 
wanting. This will be better appreciated when it is recollected that as a 
general rule, sewerage is wanting where the poorer, and especially the 
foreign portion of our population live, and as a necessary consequence, 
owing to their condition, they are compelled to resort to our public chari- 
ties for care and treatment, thus making the difference in the ward mor- 
tality still greater. 

INFANTILE MORTALITY. 

For the last six years I have repeatedly called attention to the great 
number of deaths under five years of age that occur in this city during the 
summer months. The following table for six months of 1872, will show 
the increase of deaths under 5 years of age in the months of July, August, 
and September, when the lack of drainage is most manifest, compared 
with the preceding three months. 



^ 



Total mortality 

Under five years 

Five years and over,. 











tv»' 






1 






to 




756 


628 


813 


1,372 


1,557 


988 


407 


309 


493 


1,059 


1,137 


553 


349 


319 


320 


313 


420 


435 



6,114 

3,858 
2,256 



Between April and May, there is not much difference, but in June, when the 
"heated term" commences, there is a great increase, and in the next 
three months we find that 70 per cent, were under five years, and that for 
the preceding three months there were 55.02 per cent, of the whole num- 
ber under five years. The following table gives the number of those born 
in Chicago who died during this time, nearly all of them being under five 
years of age : 



^ 



Native parentage 

Foreign parentage 

Excess of foreign parentage 











■t-^ 






1 


^ 

8 

>$ 
^ 


►^^ 

^ 






125 


37 


104 


229 


166 


97 


259 


224 


364 


709 


836 


393 


134 


151 


260 


480 


671 


296 



793 
2,785 
1,992 



Sewerage. 



In the first three months we had 302 deaths of native parentage, and 
847 of foreign parentage, a total of 1,149 o^^ of 2,197 of ^ nationalities, 
and for the next three months we had 487 of those born of native parent- 
age, and 1,938 of foreign parentage, or 2,425 born in Chicago out of 3,919 
of all nationalities. For the first period we have about 22/^ deaths among 
those of foreign parentage to one of native parentage, and for the next we 
have nearly four of foreign to one of native, while it should be, according 
to population, about two and a half of foreign to one of native. This great 
excess of mortality among those born of foreign parentage may be account- 
ed for to a great extent by the fact that our foreign population mainly resides 
in the undrained portions of the city. For a further elucidation of this 
subject the following table is appended, showing the chief causes of death, 
nearly all of the decedents being under five years : 




It will therefore be seen that nearly one-half of all deaths resulted from 
the above-mentioned diseases, and how rainfall and increase of temperature 
influence infantile life. 

An examination of the records shows that the percentage of deaths un- 
der 5 years, from 1843 to 1872, inclusive, was 53.57 of the total; from 1849 
to 1854, inclusive, 35.57 ; from 1856 to 1861, inclusive, 56.05 ; from 1862 
to 1866, inclusive, 51.26, and from 1867 to 1872, inclusive, 60.00. I have 
made these divisions in accordance with the sewerage periods alluded to 
in the early part of this report. In 1867, we had 57.63 ; 1868,62.03 ; 1869, 
63.00; 1870, 62.64; 187 1, 56.08; 1872, 58.19 of the whole number of 
deaths. Lest these differences should not be understood, I would state 
that up to 1867 the registration of deaths was exceedingly defective, par- 
ticularly with reference to children, and that this will, in a measure, ac- 
count for the difference before and since that time ; although I am satis- 
fied that the difference would not appear as great if the registration had 
been accurate. I am also satisfied that the percentage of deaths under 
five years would have been found to be fully five per cent, higher than 
stated had complete registration been made, even taking into consideration 



lO 



Board of Health. 



that we had here fewer persons who had passed the prime of life, and 
among whom deaths are proportionally less frequent, than usually obtains 
in older communities. 

From a report of Dr. Toner, of Washington, who has paid much at- 
tention to this subject, I find that the United States census shows : 



1850-. 
i860... 
1870-. 



Total 
Mortality. 



323,272 
392,821 
492,263 



Moftality under 
Jive years. 



123,211 

168,285 
205,213 



Percentage of 
Total. 



38.11 
42.80 
41.28 



It appears then that for the three periods under consideration, there was 
a mortality for the entire country of 40.73 per cent, under five years, of the 
whole number of deaths, or that we have in Chicago, 12.84 per cent, more 
deaths under five years, according to the records, since 1843, and since 
1867, 19.27 per cent, more than the average for the whole country. 

OTHER CITIES. 

In New York from 1804 to 1853, inclusive, it was 50.57 per cent., and from 
1866 to 1870, inclusive, it was 50.56 per cent, under five years of the total 
mortality. Philadelphia from 1858 to 1870, inclusive, 45.26 per cent, of 
the whole number, and in 187 1, 41.98 per cent. Baltimore for i860, '62, 
'65, 'dd.^ inclusive, 47.06 per cent., and Providence from 1865 to 1870, in- 
clusive, 34.45 per cent, of the whole number. St. Louis in 1870, 51 per 
cent., in 187 1, 49 per cent., and in 1872, 50.03 per cent, of the total. It 
will therefore be seen that the percentage of mortality under 5 years in Chi- 
cago is greater than in any of the cities mentioned ; in fact, I am pretty well 
satisfied that it is greater than for any city in the United States. This may 
seem startling to those who are accustomed to boast that Chicago is the health- 
iest city in the world, but it is nevertheless true. In judging of this question 
it must, however, be borne in mind that we have a younger and more vig- 
orous population than any other city, and that proportionately we have 
more children and fewer deaths of those over fifty years of age. To show 
the additional cause or causes of this great mortality among children, I 
would call attention to the following table, showing, by months, the deaths 
which occurred under six years, in each ward, for the last year. In expla- 
nation, I would state that I have taken the deaths under six years as the 
basis, for the reason that the school census taken in October gives the 
number of children under six years, but not under five ; and although it is 
not as satisfactory as if the calculations were based upon the deaths under 
five, it will still give an approximation of what it would be, as there is only 
about three-quarters per cent, difference. 



Sewerage, 
INFANT MORTALITY BY WARDS. 



1 1 





rs 


rN 














i^* 




^ 


1^ 




WARDS. 


e 
^ 


1 


1 




^ 

^ 


1 


•^ 

^ 











1 




First Ward, 


4 




















4 


Second " 




__ 


I 


I 


2 


I 


1 




2 


2 


I 


2 


13 


Third 


22 


II 


21 


26 


9 


14 


24 


25 


17 


10 


12 


8 


199 


Fourth 


5 


13 


8 


8 


5 


10 


19 


20 


2 


2 


2 




lOI 


Fifth 


8 


14 


17 


15 


6 


14 


40 


30 


17 


19 


12 


7 


199 


Sixth 


25 


39 


48 


4T 


22 


38 


120 


121 


66 


39 


30 


39 


628 


Seventh " 


22 


36 


35 


25 


39 


54 


121 


149 


74 


56 


31 


39 


681 


Eighth 


3« 


49 


42 


43 


36 


44 


III 


141 


54 


28 


35 


31 


652 


Ninth 


30 


33 


38 


40 


23 


44 


66 


88 


49 


24 


29 


28 


492 


Tenth 


7 


12 


7 


5 


9 


4 


24 


13 


II 


4 


7 


II 


114 


Eleventh " 


18 


■ 7 


24 


21 


11 


II 


36 


37 


20 


10 


6 


15 


216 


Twelfth 


12 


10 


18 


12 


9 


17 


44 


39 


15 


II 


6 


9 


202 


Thirteenth " 


6 


6 


8 


9 


8 


5 


18 


22 


4 


5 


4 


2 


97 


Fourteenth " 


7 


7 


14 


12 


13 


18 


30 


31 


II 


9 


20 


7 


179 


Fifteenth 


44 


53 


53 


64 


56 


119 


194 


190 


96 


77 


52 


62 


1,060 


Sixteenth " 


13 


21 


25 


31 


21 


38 


63 


95 


36 


24 


13 


21 


401 


Seventeenth " 


5 


18 


12 


13 


21 


37 


68 


74 


46 


14 


9 


21 


338 


Eighteenth '* 


10 


11 


10 


20 


9 


21 


48 


67 


23 


21 


12 


12 


264 


Nineteenth " 


I 




I 


2 




I 


II 


5 


2 


3 


I 


3 


30 


Twentieth " 


I 


I 


-- 


I 


-- 


I 


4 


5 


3 


2 


3 


3 


24 


Total 


278 


341 


382 


389 


299 


491 


1042 


1152 


548 


360 


285 


327 


5,894 



Hospitals and public institutions 233 

Total under 6 years 6,127 

It will be seen from this table that the Sixth, Seventh, Eighth, Ninth, 
Fifteenth, Sixteenth, Seventeenth and Eighteenth Wards had the most 
deaths, and, generally speaking, there is in them the least drainage 
and density of population. In them there were 45,049 children under six 
years, and to each one of them 9.99 feet of sewerage, while in the remain- 
ing wards under consideration, there were 20,016 children, and 14.50 feet 
of sewerage to each, with a greater density of population; and there was 
one death in the first eight wards to 6.72 feet of drainage, while there was 
only one death to 29.40 feet in the others. 

The First, Second, Nineteenth and Twentieth Wards are omitted in 
these comparisons, owing to the fact that when the year commenced but 
few people lived in them. 

It will also be seen that there were 233 children who died in hospitals 
and public institutions ; and for a more thorough appreciation of the ques- 
tion it is necessary to recollect that they came mainly from the first eight 
wards under comparison, thus swelling the death rate of the same. 

DIFFERENCES IN MORTALITY. 

For the purpose of showing still more clearly the causes of the differ- 
ence in mortality, the following table has been prepared, in which will be 
found the percentage of children under 6 years, and deaths among them 
during certain months of the year : 



12 



Board of Health. 



Wards. 


•entage of Pop- 
nation tinder 6 
ars. 


CO 

M 

1 


death in Jan- 
X7y, February, 
arch and Ap'l. 


death in June, 
uly, Attgust, 
id September. 


death in Oc- 
ber, November, 
id December. 


sity of popu- 
tion, one to 
uare yards. 


of sezverage to 
ch person in 
ard. 




%^ K 




M^ 


^^5 


^^5 


5; '~^ '^ 


^j ^ s 




^ 


6 


C) 








^ 


^ 


Third Ward-_. 


12 


11.60 


29.00 


29.00 


77-43 


93 


2.66 


Fourth " .._ 


II 


18.10 


54,52 


36-31 


168.36 


200 


3-12 


Fifth " ... 


15 


14.10 


52.00 


27.80 


73.90 


234 


2-33 


Sixth " ... 


23 


11.87 


48.76 


21.42 


69.08 


450 


1.06 


Seventh " 


20 


8.47 


48.69 


14.46 


41.71 


690 


0.66 


Eighth " ... 


21 


10.18 


38-62 


18.69 


70.67 


243 


1-33 


Ninth " ... 


17 


10.75 


37-43 


21.40 


65.28 


76 


1.66 


Tenth " ... 


8 


13-36 


49.00 


29.21 


69.27 


84 


3.83 


Eleventh " 


12 


10.44 


32.00 


21.58 


72.42 


73 


3.00 


Twelfth " ... 


14 


15-05 


60.82 


26.44 


185.40 


I/O 


2.05 


Thirteenth " 


15 


21.48 


75-31 


42.53 


189.40 


790 


2.05 


Fourteenth " 


i8 


16.18 


72.65 


32.27 


89.00 


438 


1.06 


Fifteenth " 


20 


7.81 


39.18 


14.01 


43-90 


374 


0.87 


Sixteenth " 


21 


10.44 


46-55 


17-88 


72.18 


279 


1.05 


Seventeenth " 


20 


10.62 


75-00 


16.00 


81.84 


137 


2.58 


Eighteenth " 


i8 


14-35 


74-23 


23.80 


84.1^ 


89 


2.94 



The first column represents the percentage of children under six years 
to the total population, and the next the number of deaths, according to 
the population under six years in each ward. This not alone shows the 
want of drainage, but also the effect on life of the crowding incident to 
the Fire. In the third column are found the deaths for the months of Jan- 
ary, February, March and April, and it is during this period that crowding 
exercised a greater influence upon mortality than at any time in the year; 
this being particularly the case in the Third, Ninth, Tenth, Eleventh, and 
a portion of the Seventh, Eighth and Fifteenth Wards. Here will also 
be noticed the change of locality in the population of the city, as in the 
Seventeenth and Eighteenth Wards the deaths are less than in others where 
all the conditions are more favorable to life, and this is owing to the fact that 
during these months population was sparse in them, and, as it increased, 
there was a corresponding increase in mortality. In the fourth column 
the result of the want of drainage strikingly appears, particularly in the 
Sixth, Seventh, Eighth, Ninth, Fifteenth, Sixteenth and Seventeenth Wards. 
It is also apparent in the Fifth, Eleventh, Twelfth, Fourteenth and 
Eighteenth Wards by increasing their death rates, while density of popu- 
lation exercised some influence in the Third, Ninth, Tenth, and Eleventh 
Wards, or what might be properly termed the inner wards of the city. 
For the last three months of the year there is not the same difference in 
ward mortality as observed in any of the other periods. Here is seen the 
effect of the conditions in which the population of the different wards are 
placed with regard to the comforts and necessaries of life, and in some 
measure to density ; and where there is a deviation it is of a local and not of 
a general character. There is, however, apparent in certain localities, even 
in the last three months of the year, the result of the want of drainage ; 



Sewerage, 



13 



Infantile life under these circumstances, if it has escaped the direct effects — 
vitality being depressed, — will more readily succumb to other causes, among 
them low temperature, which no doubt exercised a marked influence in in- 
creasing the death rate, particularly in the Seventh and Fifteenth Wards, 
in the last two months of the year. The last two columns of this table 
were added simply for comparison, as I allude to them more especially 
elsewhere. 

EFFECT OF CONTAGIOUS DISEASES. 

In this connection I would call attention to the fact that the infantile 
death rate is influenced very much by contagious diseases, such as scarlet 
fever, measles, and whooping cough, which, as a general rule, are incident 
to childhood. This will, to some extent, explain the fluctuations in the 
annual percentages, as will be seen by the following table : 



Wards, 



1867 
1868 
1869 
1870 
1871 
1872 



Scarlet Fe- 



lOI 

1S2 
573 
351 
139 
145 



Measles. 



107 
109 

95 

157 

37 



Whooping 
Couish. 



62 
86 

131 
91 
73 

124 



Total. 



251 
375 
S13 
547 
386 
306 



Per cent. 

under 
5 years. 



57-63 
62.03 
63.00 
62:64 
56.48 
58.19 



Death per 
1000, from 
all causes. 



21.17 

23.74 
23.16 

24-53 
21.46 
27.60 



This table shows that the infantile death rate is more affected by these 
diseases than is the general death rate, which was swelled by 103 in 
187 1 who lost their lives by burning during the Fire, and by falling 
walls. Deducting these, both were lower than for any year since 1861. 
In 1872, the percentage under five years was almost two per cent, higher, 
notwithstanding a decided decrease in the diseases that for the other years 
played so prominent a part in increasing the percentage of deaths under 
five years ; while at the same time a large majority of those that died of 
small-pox were over five years of age ; and, in the increase of our popu- 
lation, consequent upon the rebuilding of the city, there was a greater pro- 
portion of adults, particularly strong and healthy males. There must, 
therefore, be a special cause for this increase of mortality, and from the 
facts adduced, it is safe to assume that the slight rain-fall was the main 
cause of the low death rate during the months of July, August, and Sep- 
tember of 187 1, and that the greater rain-fall for the same period in 1872 
was the chief cause of the high death rate, the effect of the same being 
manifest in the great increase of deaths in the undrained portions of the 
city. 



H 



Board of Health. 



THE INCREASE OF DEATHS IN 1872. 

The increase in the number of deaths in 1872 over 187 1 was 3,180, a 
greater change than has occurred in any two years in the history of the city, 
no matter what the increase of population was, or whether the city was 
decimated by cholera or any other malignant epidemic. This was the 
more noticeable from the fact that there was not a marked epidemic pre- 
valent, although small-pox and cerebro-spinal meningitis existed in the 
city, but the number of deaths from these and similar diseases was not 
great enough to cause this change, as will be seen by the following table. 



Year. 



1856 

1857 
1858 

1859 
i860 
1861 
1862 
1863 
1864 
1865 
1866 
1867 
1868 
1869 
1870 
1871 
1872 



•1 
1 


1 




"•0 

tr 




Percentage 
of mortal- 
ity by these 
diseases. 


15 


16 


16 


9 


56 


2.67 


75 


10 


39 


20 


134 


5.55 


233 


5 


22 


19 


279 


12.37 


253 


3 


10 


12 


278 


13.84 


125 


3 


15 


24 


167 


7.37 


45 


3 


26 


24 


98 


4.30 


335 


5 


38 


27 


405 


14.28 


405 


115 


28 


91 


639 


16.49 


70 


285 


135 


19 


509 


11.64 


89 


57 


20 


15 


181 


4.49 


127 


9 


166 


184 


486 


7-44 


lOI 


123 


88 


62 


344 


7.40 


182 


146 


107 


86 


521 


8.06 


573 


17 


109 


131 


830 


12.76 


354 


14 


95 


91 


554 


7.68 


139 


71 


157 


73 


460 


6.59 


145 


655 


32 


124 


946 


9.31 



?s o Q 
^ K I 8 



24,80 

25.65 
26.84 
21.36 
20.70 
18.99 
20.69 
25.83 
27.57 
22.57 
32.22 
21.17 

23.74 
23.16 

24.53 
21.46 
27.60 



GENERAL CONCLUSIONS. 



Attention has already been called to the effect of rain-fall on life, and, 
after careful investigation, I can come to no other conclusion than that if 
our system of sewerage had been extended with the same rapidity that it 
was from 1866 to 1870, this great increase of mortality would not have oc- 
curred. 

Prepare tables and group data as we may, the same general facts meet us. 
This is the more noticeable when it is borne in mind that we know posi- 
tively how many feet of sewers have been constructed, and how many 
deaths occurred in each ward, but we do not know with absolute certainty 
what the population was in each year, as in some years it was only esti- 
mated, and in 1872 obtained from the school census. With these uncer- 
tainties, and making due allowance for all errors, the result is still the same. 
For the first period of sewer construction ending in i860, there were built 
2.59 feet to one of the population; the next ending in 1866, there was a 



Sewerage. 1 5 

falling off to 2.23 feet, and from 1866 to 1870 inclusive, there was an in- 
crease to 2.67 feet, and in 187 1 a decrease to 2.54, and in 1872 a still great- 
er decrease to 2.43 feet. It will, therefore, be seen that for the last two 
years the population of the city has been increasing faster than the sewer- 
age has been extended, and that this is the chief cause of the increase in 
the death rate. Allowing 1,200 of the deaths for increase of population 
and the direct result of the Fire, 655 that died of small-pox, 425 from 
crowding and the indirect effects of the Fire, we still have an increase of 
900, which, I am satisfied, died from the want of proper drainage. 
, A comparison of the i8th and 15 th Wards will demonstrate the truth of 
the position taken in regard to sewerage. The first mentioned ward has 
nearly three feet of sewerage to every inhabitant, while the other has but 
seven-eights of a foot to each one of the population. What natural ad- 
vantages there are, such as elevation, &c., are in favor of the 15th ward. 

The number of deaths for July, August, and September, of 1872, were 
I in 104 in the i8th ward, and i in 65 in the 15th; and for the whole year, 
I in 56.70 in the i8th, and i in 27.02 in the T5th. Of those under 6 
years, we find in the i8th ward i in 14.35, while in the 15th there was i in 
7.81. 

In the 1 8th ward there are only 89 square yards to each inhabitant, 
while in the 15th there are 374; but, taking an extent of territory equal 
to the area of the i8th, from the lower and eastern portion of the 15th, 
where the greatest mortality occurs, the difference is not so great, while 
the air space is still greater than in the i8th w^ard. The density of the 
population in the i8th ward has been increased since the Fire, by the build- 
ing of a number of houses by the Relief and Aid Society, on lots on Haw- 
thorne avenue and Elm street, 2 and 3 deep on the same lot, and in a portion 
of the ward that is undrained. In addition, almost every portion of this 
ward was burned over, so that the privation, added to the depressing effects 
of the Fire, no doubt had some influence in increasing the death rate. 

The 18th ward, as a whole, was naturally lower than any other in the 
city, until sewers were constructed and the streets improved. These 
wards are selected for the purpose of comparison because they are more 
nearly alike than any two in the city, and lie on the North Branch, directly 
opposite to each other. Taking all things into consideration, the i8th is 
the poorest ward in the city. E\ery portion of the ground is clayey, and 
was originally low, and its inhabitants are nearly all of the poorer class of our 
foreign population, of different nationalities, as is also the case in the 15 th 
ward, with the exception that there are more Irish in the i8th than in the 
15th. 

At no time since the construction of sewers commenced in this city have 
they been adequate to the sanitary requirements, and as long as this state 
of things continues, owing to the topography and character of the soil up- 
on which the city is built, we must expect to have a high death rate, par- 



i6 



Board of Health. 



ticularly among children. The general death rate is not as high as in some 
other cities ; but, as I have before shown, the infantile death rate is higher 
than in any large city in the United States.* There are, however, parts 
of the city where the infantile death rate is as low as in any portion of the 
United States, 

THE AREA NEEDING SEWERAGE. 

From W. H. Clark, Esq., of the Sewerage Department, to whom I am 
indebted for many other facts pertaining to this subject, I learn that there 
are 14,678 acres in the territory east of Western avenue, within the city 
limits. Of these, only 4,372 acres are drained, and about 4,000 more need 
sewerage at this time. Sanitary necessity demands the immediate addition 
of about 5,000 feet to the drainage of the western and northern portion of the 
Fourth Ward, although the death rate of the ward is very low. As in every 
other instance, however, the poorest portion, and that which needs drainage 
most, is undrained. This addition to the present drainage would, no 
doubt, materially diminish the death rate. In the western and northern 
part of the Fifth Ward much good can be accomplished by about 9,000 
feet. Draining every street north of Twenty-second that is unsewered in 
the Sixth Ward, and extending the system to Twenty-sixth street, and 
along the river, to the extent of 16,000 feet, is also needed. In the Seventh 
Ward, where, for the last two years, we have had the highest death rate, 
about 17,000 feet is required. It is specially important that all the streets 
east of Halsted should be sewered, as population there is dense, and natural 
drainage very defective ; and that Morgan street be sewered, — although 
population is not so dense there, — but for the purpose of relieving a 
densely populated district in the Eighth Ward, that has no other outlet. 
With 9,000 feet, the pressing necessities of the Eighth Ward can be re- 
lieved, and its sanitary condition much improved. The building of 8,000 
feet in the Ninth Ward is demanded, as there are streets in it that are in 
as bad a condition, taking everything into consideration, as any others in 
the city. It is specially important that a ward so centrally located and 

* GENERAL DEATH RATE OF THE LARGER CITIES OF THE UNITED 

STATES FOR 1871, '72. 



Cities. 



New York -. 

Philadelphia 

Brooklyn 

St. Louis 

Chicago - 

Baltimore 

Boston - 

Cincinnati - 

New Orleans 

San Francisco 

*School Census, Oct. i 



Pop. 1870, 
Census. 



942,292 
674,022 
396,099 
310,864 
299,227 
267,354 
250,526 
216,239 
191,418 
149,473 



Deaths. 
1871. 



26,976 

15,485 

10,259 

5,265 

6,976 

7,141 
5,888 
4.832 

5,595 
3.214 



Death Rate 
per 1000. 



28.63 
22.95 

25. TI 
16.93 

23-31 
26.71 

23-49 
22.34 
29.22 
19.85 



Pop. xZ-ji. 
"Estimated. 



1,000,000 
750,000 
415,000 
400,000 

*367,293 



265,000 
250,000 
200,000 
186,000 



Deaths. 
1872. 



32,647 
18,987 
12,458 
8,047 
10,156 

8,089 

5,075 
6,122 

3,154 



Death Rate 
per 1000. 

32.64 

25-34 
30.00 
20.11 

27.60 



30.89 
20.30 
30.60 
16.90 



'' Sewerage. 17 

densely populated should be thoroughly drained. The Tenth Ward needs 
about 2,000 feet ; and in the Eleventh there are still streets undrained, and 
near the river, where from character of soil and density of population it is 
important to build at least 5,000 feet. Although the mortality of the 
Twelfth Ward is not so high as in many others, still, as obtains in other 
portions of the city, the poorest part, from all standpoints, is undrained, 
and the construction of 7,000 feet would greatly diminish the death rate. 
The Thirteenth Ward is really one of the best wards in the city, but the 
addition of about 6,000 feet would add materially to its healthfulness. 
We now come to the Fourteenth Ward, which has the least amount of 
sewerage as a ward, but its death rate, owing to character of population, 
elevation and air space, is lower than many others ; but the addition of 
9,000 feet would be advisable. Between the Seventh and Fifteenth Wards, 
for the last three years there has existed a rivalry as to which should have 
the highest death rate, both having about the same number of feet of 
sewers to each individual, which, however, is less than in any of the other 
wards. Eighteen thousand feet are immediately needed to relieve the 
latter from much sickness and death. It is the most populous, and at the 
same time, one of the largest wards, has a great river front, and the soil of 
every portion of it is clayey, where drainage is consequently more needed, 
from sanitary considerations, than in a sandy soil. Coming to the North 
Side, the Sixteenth Ward needs, immediately, about 14,000 feet, and the 
western part of the Seventeenth, 9,000; the Eighteenth, about 5,000, and 
the Nineteenth, 3,000 feet to complete its drainage.* 

The construction of the sewerage alluded to in the different wards can 
be carried on without deviation fi^om the general system, and if made in 
streets^g^fcmmended by this Board, will, in my opinion, diminish the 
death ^1^ of the city five per cent., and I have no doubt that if every 
portion of the city that is now in want of drainage was sewered, the death 
rate, as a general rule, would be reduced 12 per cent. ; the infantile, nine; 
and over 5 years, three per cent., making it one of the healthiest large 
cities in the world, which, I am sorry to say, it is not now, owing more to 
the want of drainage than anything else. 

THE EFFECT OF SEWERS ALREADY BUILT. 

The construction of sewers under the Sewerage Commission, in its effect 
on life, was marked, and the sewers were located on streets where it was 
most beneficial from a sanitary standpoint, and in accordance with the 
spirit and intent that gave origin to the Commission. In 1862 we find 
that a sewer was built by order of the Common Council, 4,572 feet in 
length, and 4^ feet in diameter, on a street, at that time, sparsely popu- 

* The sewers at Twelfth and Twenty-Second streets, emptying into the Lake, should be 
extended, for when the Lake is low and the wind is in a favorable direction, the exhala- 
tions from the sewage are exceedingly offensive to the neighborhood. 



1 8 Board of Health. 

lated ; the sewer running farther west than any other on the West Side ; 
and it was built more for the pecuniary benefit of interested parties than 
from any other consideration. The cost of this sewer was equal to half of 
the amount expended on the West Division, while there were localities 
where population was more dense, and nearer the centre of the system, 
and where much more good could have been accomplished. In 1869 a 
sewer was built, 5,348 feet in length, costing $118,000, or nearly one-fifth 
of the total expended for sewerage during that year, which, at that time, 
did not drain a territory whereon 300 people lived, while this amount of 
money could have been expended in localities where 20,000 persons would 
have been benefited, and where it was a necessity. At the present time 
however, the sewer is needed, as population has very much increased in 
that neighborhood, and it is required to carry out the general system. 
Even as late as last year an order was passed by the Council for the 
drainage of Vincennes avenue and Langley Place, among the highest and 
best streets in the city, and far remote from the centre of population, to 
the exclusion of streets in the western portion of the Fourth and in 
the Sixth Ward where it is much more needed, and would be at least two miles 
nearer the heart of the city. Many other instances have occurred, within 
my official experience, where interested parties have secured sewerage, 
even to a deviation from the system, when other streets, not far remote 
and strictly in accord with the system, were neglected, although sewerage 
in them was much more needed, owing to their density of population, low 
ground, and nature of soil. Little did these parties think or care that 
their comfort and the enhanced value of their property, incident to drain- 
age, was at the expense of the lives of some of their fellow beings, to 
whom life was as near and dear as to themselves. 

OUR SANITARY DUTIES. 

The sewerage system of this city had its origin in a sanitary necessity, 
and it is strictly a sanitary measure. All sewers should be located in 
reference to these considerations, and no others. In speaking thus I do 
not wish to be understood as saying that I do not want the better por- 
tion of the city drained, for, on the contrary, I am exceedingly anxious to 
have every part of it sewered. The drainage of the poorer parts of the 
city, where population is dense, should be the first care of the municipal 
authorities. Those living in such districts are least able to control the 
conditions that affect health, and, therefore, are legitimate objects of the 
city's"care. 

By strictly pursuing this course we shall have the co-operation of those 
who are remote from the centre of the Sewerage system — most of whom 
will be interested, not alone from sanitary, but from pecuniary considera- 
tions ; and, thus, the drainage of the entire city will be more quickly secured 



Sewerage. 1 9 

than if the sewerage funds were expended wherever personal or political 
influence could divert it. 

DEFECTS OF OUR ORDINANCES. 

The pressure brought to bear upon the Board of Public Works and the 
Common Council, for the last two years, by interested parties to secure 
drainage, has been very great, and in many instances, where they were un- 
successful by direct means, they secured the passage of orders by the 
Common Council for paving the streets, which is paid for by the property 
owners, which involved, and indeed compelled prior sewerage as a matter 
of economy before the paving of the streets, to the neglect of other streets 
where drainage was more needed. It will, therefore, be seen that the ad. 
vantage with regard to securing drainage has always been on the part of 
those best able to take care of themselves. 

It has been urged by some that many of the poorer people were too 
filthy, and that when sewers were constructed they were unwilling to avail 
themselves of the benefits arising therefrom. While this is true in some in- 
stances, still this fact does not relieve this Board or the City from their 
duty in this respect. Assuredly good drainage stimulates cleanliness ; in 
fact, there are portions of the city where nothing can be done in the way 
of improving the sanitary condition until drainage iS first secured. Its 
effect upon life is, to a great extent, insensible ; it is not seen, and, there- 
fore, by many not appreciated. Let the present law with regard to sewer 
connection be changed, as this Board has advocated for the last five years, 
and I cannot better show the necessity for it than by making an extract 
from the last report of the late lamented Health Officer, Ambrose Burn- 
ham, in which he says, speaking of this subject, and referring to the sec- 
tion of the Act under which sewer connections are enforced : " This sec- 
tion seems to have been gotten up in the interest of land and lot owners, 
and works great wrong and injustice to poor people, who lease these lands 
and lots, many of them not being able, financially, to put in the said sewer 
connection, as required by the section. The improvement is a permanent 
one, and should be made by the party owning the fee simple. Another 
reason is, the leases run from the time of notice to put in such connections 
from one month to one or nine years, and many of them from year to year, 
and some are subject to vacate premises on ten or more days' notice. It 
is utterly useless to sue the poor tenants, under the circumstances, and 
fine them, for they cannot pay the fine, and to work it out in the Bride- 
well will not drain the land, or abate the nusiance caused by lack of drain- 
age ; it will not benefit the city, but will work a great wrong to the tenant 
and those who are dependent on said tenant for their bread from day to 
day." 

A bill was prepared, making the property-owner responsible for the 
sewer connection when the lease of the ground did not extend over five 



20 Board of Health, 

years, but from some cause or other we never succeeded in having it made 
a law. If this change were made there would be no trouble in compelling 
sewer connection in the poorer wards. 

THE UNDRAINED DISTRICTS. 

An examination of the sewerage map shows that, as a rule, the highest 
portions of the city, where our wealthier people reside, have the most sewer- 
age. The sewers extend south from the Chicago River four miles, and two 
and a half north, on the lake shore ; west two and a half miles from the 
river in the central and highest portions of the West Side, while there are 
districts unsewered much nearer to the river. The Chicago River is the 
centre of the system, and the territory near it is generally low, and the soil 
clayey, and the necessity for its drainage greater than where it is 
high and sandy. In fact, the drainage of all the territory on and near the 
river, where population is dense, is the great sanitary necessity of the city at 
this time, as has already been shown by the rtiortality statistics. The more 
complete the drainage is near the river the better it will be for those who 
live more remote from it ; and although they may not immediately get 
sewers, still the effect of those built near the river will be felt by them, as 
it necessarily removes the " ground water," from a lower locality than 
where they are. It must also be recollected that drainage influences 
nearly all diseases, and that contagious and epidemic diseases are rendered 
more malignant and fatal by the want of it, so that even those who live 
away from the pestilential spots are endangered ; thus it is not alone a 
^imtter of duty, but one of safety to those that are better situated to see 
f tha> the poorei" element of our community is cared for in this respect. In 
/ fact, there is An inseparable community of interests in this matter. 

THE FINANCIAL ASPECT OF THE QUESTION. 

We now come to the consideration of the financial aspects of this ques- 
tion. It has already been demonstrated that much sickness and loss of 
life can be prevented, the value of which, from a pecuniary standpoint, can 
scarcely be estimated. Our hospitals, almshouses, and charitable institu- 
tions are mainly recruited from the unsewered districts of the city, and in 
this way there is entailed upon the community a great expense, which 
could, at least, be partially averted, and which is quite an important matter 
in an economical view, independent of the humane considerations involved. 

The amount of money expended on the sewerage of the city, as obtained 
from the Records of the Board of Public Works, is as follows: To 1861, 
$665,188.46; 1861, $3,617.31; 1862, $57,264.51; 1863, $169,299.29; 1864, 
$87,221.48; 1865, $137,643.02; 1866, $225,564.53; 1867, $416,730.51; 
1868, $197,152.92; 1869, $654,141.26; 1870, $258,684.70; 1871, $123,- 
878.92; 1872, $126,643. 

It will, therefore, be seen that during the last two years the amount ex- 



Sewerage. 2 1 

pended is not equal to that of 1870, and, during the last three years is 
only slightly in excess of two-thirds of that of 1869. The reason why no 
more sewers were built during the last two years is due to the simple fact 
that not sufficient money was provided by law for such purposes.* 

SPECIAL ASSESSMENTS. 

Early in 1870, in a report on the subject of sewerage, made by myself, 
occurs the following : " I have for some time been of the opinion that if 
the system of special assessments were inaugurated, so far as sewerage was 
concerned, it would, to some extent, put a stop to the rapidly increasing 
debt of the city, and to all complaints of favoritism in the location of 
sewers, and result in the construction of a greater number. There is a 
peculiar propriety in making this improvement in this way, as the 
benefits derived are of a more local character than even in street improve- 
ments. It certainly is of more importance to the party who lives upon the 
lot than to the public generally. Should such a change be made, an equit- 
able arrangement should also be made with regard to the present sewerage 
debt. In view of the adoption of the new Constitution, which prevents the 
contracting of municipal debts beyond a certain amount, and as the limit 
has already been nearly reached, I think it a matter of much importance 
to this city to give this subject due consideration." 

The new Constitution went into effect August 8, 1870, and in January, 
187 1, at the next meeting of the Legislature, a Bill was introduced, pre- 
pared by Corporation Counsel Tuley, on the recommendations of the 
Board of Public Works and the Board of Health, embodying the principle 
of special assessments, and providing that the sewers should be located on 
the recommendation of the Board of Health. Much opposition was mani- 
fested to the Bill, mainly on the ground of unfairness, which was more imagi- 
nary than real, and the Bill was defeated. The present law authorizing the 
levying of one mill for this purpose was then introduced and passed, al- 
though I, at the time, said that the sum was too small, as experience has 
demonstrated ; had the Bill prepared by Mr. Tuley been passed, I am 
satisfied that the death rate this year would have been considerably lower. 
The only way now left is either to increase the mill tax or resort to special 
assessments. In making estimates it must also be borne in mind that 
owing to the increase of the sewerage on the North and West Sides, the 
cleansing of the North Branch becomes a greater necessity, and some provi- 
sion must be made for this improvement. In other words, the expenditure of 
more money for sanitary purposes is an- absolute necessity. The building 
of sewers should be commenced each year as soon as the frost is out of 
the ground, in order to secure the benefits arising therefrom to as great an 



* Tfie expense entailed in securing drainage by gutters in unimproved and unsewered 
streets, and in the frequent cleaning of them, would pay a not inconsiderable portion of 
the interest of the monies expended for the construction of sewers. 



2 2 Board of Health. 

extent as possible during the summer months. Under our present system 
the money for sewerage purposes, for the year, is not appropriated until 
about the first of July, and sewer construction does not begin until the 
middle of Aug\ist, and none of them are completed until late in October, 
when their influence upon life is comparatively slight. 

EXPENDITURES OF THE BOARD. 

In this connection it may not be out of place to call attention to the ex- 
penditures of this Board. The Board of Police, controlling sanitary mat- 
ters in 1866, expended for these purposes, when. the population of the city 
was 200,418, $79,687.15, and the Common Council appropriated for our 
expenditures this year the sum of $53,520.00, while we have, at this time, 
167,000 more people, and when, in fact, it is much more difficult and ex- 
pensive to accomplish our work now than it was at that time. When the 
Board was first organized, and with the fear of cholera, money was ob- 
tained without much trouble; but for three years, although the sums asked 
for by the Board were less than was appropriated for the first year, and 
with an increasing population, not enough was allowed even to secure a 
working force, managed in the most economical manner, sufficient to do 
what was absolutely necessary ; and, therefore, second appropriations had 
to be made. In 187 1, a friend of the Board was compelled to advance 
money to some of the employees, whose services could not be dispensed 
with, to keep them from actual want until this second appropriation was 
made. The disposition seems to be to appropriate as small an amount of 
money as possible for sanitary purposes. Is it desirable that the deplorable 
condition that necessitated our present sewerage system should be repeated 
on account of a mistaken economy } There is a municipal responsibility 
in this respect that cannot be ignored. 



